Gas Works Site Land-Use Study

City of New Westminster Background Context 2 Neighbourhood Context 3 Program Elements 4 Proposed Site Planning Approach 5 Design Rationale 10 Design Elements 11 Phasing 21 C o n t e n t s

b a c k g r o u n d c o n t e x t The City of New Westminster is considering whether it wishes to request formally that the Province transfer the Gas Works site to the City as a free Crown Grant. The City has until the end of September to decide whether it wishes to make a formal expression of interest to the Province. The City is now working on resolution of the issues. There exists a strong possibility that, because of the progress made to date, the Province might grant an extension of time. The site is in an ideal location for a neighborhood park for residents in the existing housing in the Brow of the Hill neighbourhood and in a future residents of mixed use redevelopments along the Twelfth Street corridor because of its transit access. It sits at an important crossroads where Third Avenue leads down the hill to the waterfront, and Twelfth Street leads to Downtown. The site contains the important heritage asset of a Gas Works building built in 1886, as well as the liability of significant soil pollution on the site. The Province has indicated it would be responsible for remediating the site before deeding it to the City, but the City would be responsible for costs related to retaining the building itself, and the Province would require the site be used for public purposes, and, therefore, income from commercial uses of the site is not available to the City. To help resolve the issues, the City has commissioned a number of studies, of which one is this Gas Works Site Land Use Planning study. The Gas Works site is approximately 45,650 sq. ft (1.1 acre) in area, and is bounded by Third Avenue to the northwest, Twelfth Street to the southwest, private property used as a car lot to the southeast, and a lane along the northeast property line. The site slopes steeply from the north down to the south, with the highest point being the corner of Third Avenue and the lane, and the lowest point being the southern corner at Twelfth Street. The total grade change across the entire site is approximately 35 ft. There is currently a concrete retaining wall that bisects the site, creating an upper area including the 1886 Gas Works building, and a lower area at the level of 12th Street. The Gas Works Building, originally constructed to manufacture coal gas for the lighting of City streets, is now derelict but considered to be of potential heritage value as it is the last remaining building of its type in New Westminster, despite a number of modifications that have been made over the years. It is an un-reinforced brick structure of approximately 2,850 square feet, divided by un-reinforced brick walls into several rooms, and with a wood truss roof which is sagging. Soil pressure coming from the adjacent lane, which was built at a raised level after the construction of the building, has created a bulge in the wall which would need to be corrected if the building were to be retained. The building will need to be structurally upgraded, if it is retained, and the desirable level of upgrade to meet seismic requirements would need to be determined. Soil contamination is a potentially serious constraint, particularly as the pollution extends under the building itself. Future liability issues, plus the impact of remediating the pollution while saving the building, need to be determined. Options being considered include remediating the pollution under the building while either saving or demolishing the building Separate parallel studies are currently underway to determine the technical feasibility of retaining the building while allowing the removal of the contaminated soils. Three options for protecting the heritage value of the building include supporting the building on a bridge structure while excavation occurs, temporarily moving the building to a different location while the excavation takes place and disassembling the building, storing the components while the excavation takes place and then reassembling the components. The existing zoning of the Gas Works site is Light Industrial Districts (M-1). Redevelopment of the site will require a change in zoning to an appropriate district. Planning in this area is informed by the 2003 Lower Twelfth Street Community Plan, which envisages a change of land use over time to more commercial and residential uses. The area is a mandatory Development Permit area. The purpose of this site planning study is to consider a range of potential public uses for the site, including options for either retaining or demolishing the Gas Works Building, and to prepare a site plan showing these land use elements in an optimum configuration. A secondary objective was to develop a strategy for phasing development of the site over time. Site plans, sections and other design sketches accompany this narrative report. Page

N e i g h b o u r h o o d c o n t e x t Site This corner site would be an ideal, highly visible location for a Community Hub linking the existing Brow of the Hill neighbourhood to a future mixed use neighbourhood as the area across and along 12th Street redevelops. The intersection of 3rd Avenue and 12th Street would be the logical meeting place for residents to access shared community facilities as it is served by transit and forms an important gateway to downtown along 12th Street, and also a gateway from the Brow of the Hill neighbourhood down 3rd Avenue towards the New Westminster Quay waterfront, and vice versa. Combining the Neighbourhood Park with a Community Hub would create a major destination for resident interaction and offers the opportunity to be designed to form a memorable, welcoming image of community for both residents and visitors. Page

P r o g r a m E l e m e n t s City staff have identified a demand for the following uses (program elements) being potentially considered to be located on this site in the foreseeable future: Fire Hall Neighbourhood Park Community Meeting Space (in the retained Gas Works Building or as a new facility) A Community Centre, possibly related to the site being a Community Hub which may include Child Care facilities. There appears to be demand for a Fire Hall due to the current state of the current Fire Hall serving this community. There is also an immediate need for a neighbourhood park. The need for a community centre or community-based facility would increase as the population grows. Fire Hall: The City s Fire Department has identified the following parameters for the proposed Fire Hall: A Fire Hall of approximately 7,000 sq. ft. area, with four apparatus bays, at least two of which to have direct access to the street Fire truck access to be off 12th Street, with a 40 ft. apron in front of the fire truck bays required for manoeuvring. A traffic light would be desirable on Twelfth Street to allow the fire trucks to proceed away from the hall unimpeded A 1929 Mac fire truck which is still in service and could be displayed for the public 12 staff parking spaces requested Neighbourhood Park: A neighbourhood park typically has minimal facilities aside from a small playground, however other elements could be considered such as: A community garden (on raised containers isolated from the soil), plus associated garden tool storage Picnic facilities, possibly including BBQ Tennis or basketball courts A children s water / spray park area Washrooms as part of a retained heritage building, or possibly public washrooms attached to a Fire Hall or Community Centre Parking will be on the street Community-Based Facility A Community Hub or Community Centre: There is demand for community meeting space, which could be accommodated in the Gas Works Building if it was renovated, or in a new facility, and for Child Care facilities, which could provide the basis for developing the site as a Community Hub. The idea of creating a Community Hub could also lend itself to a variety of potential uses including: Health aspects provided by city and social services centre Community gathering/meeting spaces Museum - options: - Sustainable energy sources reflecting the historic gas production of the site - Historic covering coal gasification, great fire of 1898 with firefighter memorabilia and neighbourhood development of Lower Twelfth Street community Recreation facility/fitness centre Cultural Arts Centre (with potential supportive tie-in with New Westminster Arts Council) Parking for one car per every 200 sq. ft. would be required by the Parking Bylaw. Page

P r o p o s e d S i t e P l a n n i n g A p p r o a c h The proposed site planning approach is to accommodate uses noted above in an optimum configuration, ideally to create an interaction and synergy between various uses. The proposed approach is to exploit the steep slope across the site, by locating the Fire Hall at the lowest elevation fronting onto Twelfth Street, and reserving space for a possible Community Hub facility also fronting onto 12th Street at the corner of Twelfth Street and Third Avenue, creating an upper level park around the Gas Works Building, if it is to be retained, and extending the Neighborhood Park space as a green roof over the Fire Hall and in the future over the Community Hub. This approach orients the proposed active uses (Fire Hall and Community Hub ) at grade along Twelfth Street and achieves multiple objectives: It optimizes the amount of park space by extending the park over the lower facilities as a green roof; It separates the incompatible uses of a working Fire Hall, a community facilities, and Neighborhood Park; It takes best advantage of the topography and is consistent with surrounding land uses; It maximizes view potential from the Neighborhood Park; It supports 12th Street as an active commercial street and provides visual interest and eyes on the street along this street; It provides opportunities to showcase sustainable building technologies such as green roofs and natural storm water management; It allows for shared use of facilities, such as parking and recreational facilities; It suggests upper level extensions of uses along Twelfth Street to encourage interaction and provide extra eyes on the park ; It encourages social interaction; It links the Neighborhood Park to Twelfth Street while limiting access points, which could allow for gating the park at night if desired; It allows for a phased development scenario. Page

P r o p o s e d S i t e P l a n n i n g A p p r o a c h Other aspects related to this comprehensive site planning approach include: Opportunities for incorporating interpretive and commemorative displays, both related to use of the site as a Gas Works, and related to the history of the New Westminster Fire Department; Opportunities to develop the park with a gaslight theme, particularly related to encouraging its use by local residents in the evening; Opportunities for encouraging social interaction, particularly related to use as a family picnic area adjacent to a community garden and children s play areas, and possibly to a community gathering are in the renovated Gas Works building. A key site planning variable is whether the existing heritage Gas Works Building is retained or not. A separate study is currently underway to determine the technical and economic feasibility of saving and restoring/ adapting the existing Gas Works Building. Depending on the conclusions of this study, three potential options for this building have been identified. Conceptual site plans for each of these options are on following pages. For all these options, interpretive displays would be important to be included to commemorate the heritage building and the history of the site, and could possibly include historic information related to other aspects of site uses, particularly related to the proposed Fire Hall with its vintage fire engine. Page

O p t i o n A If the study concludes that the building can be saved and economically adapted for other uses, one proposal is to retain the building in its entirety and convert it into a community meeting facility. In this option, the Gas Works Building could possibly be connected with a Community Hub facility and associated parking at a lower level by an internal stair and elevator. The two buildings could then also share systems and facilities such as heating and cooling systems, washrooms, etc. One possible use for the building could be a community picnic area at the east along with a community garden. Accessability for the physically handicapped could be accommodated with an elevator located in the Pavilion of the Community Hub. Page

O p t i o n B If the study concludes that the building can be saved but that adaptive re-use is uneconomical, one proposal is to retain the building walls but remove the roof. This will create a walled yet open courtyard that could be adapted as a communal picnic area. The walls could be braced as required, by means of either a metal frame structure on the inside or outside and/or a retaining wall and support bracing alongside the lane. A canopy over all or part of the space could be incorporated into such a metal structure for rain protection. This approach means the building would not be required to meet the more strenuous Building Code requirements for an occupied enclosed space. Page

O p t i o n c neighbourhood CONTEXTGas Works Site Land-Use Study If the study concludes that the building cannot be technically or economically saved, one proposal is to demolish it entirely and add this area to the proposed park space. In this option, the proposed pedestrian access stairs from Twelfth Street would be relocated to the southern end of the property. If the building were to be demolished, memory of its footprint could be incorporated into the design of the park. Page

D e s i g n R at i o n a l e The principal physical design determinants of the site are slope, vehicle and pedestrian access requirements, sun orientation, view potential and visibility. Opportunities to create synergy between uses sharing the site should be optimized in the design, and consideration of how individual elements of these uses can be located and designed for shared use and to promote positive social interaction should be integrated into the design process. Consideration should be given to creating a theme or series of interrelated themes in the future design the site, and including elements in the design to strengthen the theme. The heritage nature of the site related to its previous use as a Gas Works is an obvious theme to capitalize on, for example including gas lighting elements for evening use of the park could be considered. Community sustainability including the issue of community energy source choices could be explored, as well as the link between energy types and the history of fire fighting in New Westminster. Related to fire fighting the theme of water could be developed, including demonstration of natural rain water management, and possibly a children s wading pool or spray park, perhaps with hydrants and hoses. Another theme could be related to a community garden, picnic area and shared food preparation. The Neighbourhood Park is proposed to be extended over the top of the Fire Hall and Community Hub, to maximize the amount of green space and also provide a more sustainable green roof for these facilities. This also optimizes view opportunities from the park. The Fire Hall and Community Hub are shown separated by a pedestrian entry court and stairway providing a view and direct access from Twelfth Street to the upper level park and Gas Works Building. A parking garage entrance is shown at the lowest end of the site, accessed from Twelfth Street, to minimize the need for ramps. Sufficient parking could be provided for the Fire Hall and a Community Hub behind these facilities, under the park. The Fire Hall is located facing the Twelfth Street frontage as this street is less steep than Third Avenue, and can thus accommodate a relatively level area for fire trucks to access the facility from the street. In addition, locating the Fire Hall down from the middle of the block reduces potential conflicts with other traffic at the intersection of Third Avenue and Twelfth Street. Space for a potential Community Hub or other future community facility is reserved at the corner of Third Avenue and Twelfth Street, fronting onto Twelfth Street, to optimize its visibility from the surrounding neighbourhood and also to strengthen the connection down Third Avenue between this community facility and the waterfront park at the foot of the Third Avenue overpass. Both the Fire Hall and the Community Hub would be at a lower grade than the proposed Neighbourhood Park. Both facilities, however, could also have small upper level pavilions rising out of the park to provide access between different site uses, including potential elevator access for disabled persons, and eyes on the park to increase security. The Fire Hall pavilion could house a fitness room and provide access to a possible Fire Hall tower, which could also possibly be integrated with a public viewing tower accessed from the park. The Community Hub pavilion could house a Day Care Centre and provide direct access to secured outdoor play space. Page 10

D e s i g n E l e m e n t s A number of design elements are proposed for consideration in a future comprehensive site design process. The following describes these design elements, their location, function and any special attributes. Gas Works Building (Option A) Building retained in its entirety. Adapted as a community meeting facility. Internal vertical connection to lower level Community Hub and parking garage. Page 11

D e s i g n E l e m e n t s Gas Works Building (Option B) Roof removed. Exterior walls to be retained as a freestanding walled courtyard that could be used as a landscaped garden. This could include unique plants that survive and grow in more protected environments. Possible freestanding canopy to provide shelter and rain protection. Open aired picnic tables could be included as part of the garden. Page 12

D e s i g n E l e m e n t s Gas Works Building (Option C) Building demolished. Area forms part of expanded community garden. Page 13

D e s i g n E l e m e n t s Picnic Area Located immediately adjacent to Gas Works Building (in Options A & B) Faces out over park Water Park & Water Course Children s wading pool or spray park, integrated with natural rain water management system Located towards north end of park, with rain gardens following natural slope of the site down to a Twelfth Street Entry Court Community Garden Located in southeast part of site, behind Gas Works Building (Options A & B) Expanded if Gas Works Building is demolished (Option C) Faces south to optimizes sun exposure Basketball Court Located over top of the Fire Hall adjacent to community garden Page 14

D e s i g n E l e m e n t s Green Roof Extends park out over the top of the Community Hub and Fire Hall Creates a potentially high performance roof system that reduces heating and cooling costs, increases the lifespan of the roof, reduces and filters stormwater runoff, and provides superior sound insulation Page 15

D e s i g n E l e m e n t s Day Care Pavilion & Play Area Pavilion forms top floor of Community Hub facility located under the park. Overlooks park and adjacent secure play area. Provides eyes on the park from community facility. Page 16

D e s i g n E l e m e n t s Entry Court & Stairway Located approximately halfway along Twelfth Street frontage. Provides direct view and access route up to Gas Works Building picnic area thus connecting the Gas Works Building that is isolated at the back of the lot with the street. Page 17

D e s i g n E l e m e n t s Community Hub Corner Entry Pavilion Located at corner of Third Avenue and Twelfth Street. High visibility to surrounding community. Announces entrance to Community Hub. Page 18

D e s i g n E l e m e n t s Fire Hall Tower & Fitness Room Rises above green roof. Provides eyes on the park from the Fire Hall. Provides connection between the Fire Hall and the Basketball Court. Possibly integrated with a public viewing platform. Page 19

D e s i g n E l e m e n t s Heritage Fire Truck Pavilion Located on Twelfth Street elevation. Creates visual interest along the street. Helps to separate the Fire Hall forecourt and public parking entrance. The Heritage Fire Truck bay will be glazed in. Page 20

P h a s i n g The proposed site planning approach could be phased in a number of ways. Opportunities to include various community uses could develop over time, particularly as the adjacent industrial lands are redeveloped. A land use plan should be designed to allow for flexibility of implementation and to adjust for future opportunities and changes in community needs. One scenario is that the first phase of development would include the Fire Hall and Neighbourhood Park, but not the Community Hub facility. The area towards the corner of Third Avenue and Twelfth Street (site of the proposed Community Hub ) would be left open, re-graded and temporarily feature a labyrinth style garden with water feature/public art or other appropriate use. The southeast corner would also be re-graded and covered with topsoil to create a community garden. The parking garage would be developed for the Fire Hall requirements only. In this scenario, when and if funding becomes available, the Community Hub would be built, completing the site development. The parking garage would be extended for the Community Hub requirements. The park itself could be developed in phases. For example if the Gas Works building were to be retained, portions of the park could built prior to completion of upgrading the heritage building. Page 21